中国贫困地区时空格局与差别化脱贫政策研究

Spatial-temporal Pattern of Poverty-stricken Areas and its Differential Policies for Poverty Alleviation in China

        周侃(中国科学院区域可持续发展分析与模拟重点实验室 北京 100101;中国科学院地理科学与资源研究所 北京 100101)
        王传胜(中国科学院区域可持续发展分析与模拟重点实验室 北京 100101;中国科学院地理科学与资源研究所 北京 100101)

         贫困地区;国家级贫困县;相对贫困;资源环境承载能力;脱贫政策

        spoverty-stricken areas;state-level poverty counties;relative poverty;resources and environment carrying capacity;policies for poverty alleviation

        2020年我国现行标准下农村贫困人口实现脱贫,贫困县全部摘帽,解决区域性整体贫困,是全面建成小康社会最艰巨的任务。文章在脱贫现状及贫困格局分析的基础上,解析我国贫困地区资源承载能力特征,识别贫困地域类型,提出实施差别化脱贫政策建议,以期为创新扶贫体制机制、因地制宜地实施精准扶贫提供决策参考。研究表明:目前我国农村贫困人口大幅减少,绝对贫困人口的温饱问题得到基本解决,但相对贫困仍然凸显,且发展差距趋于扩大;贫困地区集中连片分布态势仍未转变,且总体承载能力弱,局部区域资源环境已经超载;贫困地区应根据承载能力和发展潜力制定差别化的区域脱贫政策。

        In 2020, shaking off poverty in rural areas under current standards and tackling the regional overall poverty is the most difficult challenge to build a well-off society in an all-round way in China.In this paper, based on the analysis of the status quo of poverty alleviation and development in China, and the characteristics analysis of resources and environment carrying capacity inpoverty-stricken areas, we attempt to identify and classify the regional types of state-level poverty counties, andput forward the differential policies for poverty alleviation and development inChina's 13thFive-Year Plan. The result shows the followings.Firstly, since the reform and opening policy in 1978, adhering to government-dominant and development-oriented guiding principles, China has conducted organized, well-planned, and large-scale poverty alleviation program which resulted in remarkable success.The number of people living in absolute povertyhas significantly decreased in China, poor rural population dropped from 94.22 million at the end of 2000 to 26.88 million in 2010, and poverty incidence rate decreased from 10.2% to 2.8%.Meanwhile, the relative poverty populationaccording to the estimation results of international standards remains more than 200 million people for a long time.Both the gap between rural per-capita net income and urban per-capita disposable income, andthe income gap among rural areas were widened as well. Secondly, the nationwide poverty has been basically eliminated in China, but the contiguous and concentrated distribution of poverty-stricken areas has not changed significantly. The classification result of types of resource and environmental constraints instate-level povertycounties shows that, there are 456 poverty countiesrestricted by the resources and environment in China, accounting for 77% of all state-level poverty counties(592), and the proportions of resource-constrained types, environmentconstrained types, and comprehensive-constrained types are 33%, 23%, and 21% respectively.In poverty-stricken areas, the overall resources and environment carrying capacityis proved to be relatively weak, the resource and environmental burden is chronically overloading,especially in ethnic areas and mountain areas ofcentral and western China, and the potential to enhance capacity is greatly limited, moreover,the recovery cost is tremendous once the local carrying capacity is overloaded.Consequently,toaimat providing the decision-making evidence for innovations inpoverty alleviationof systems and mechanismsand implementing accurate poverty alleviationin accordance with local conditions, we suggest thatpoverty-stricken areas should make differential policies to get rid of poverty based on regional carrying capacity and development potential. On the one hand,the policies for poverty alleviationin the poverty-stricken areas faced with vulnerable ecological environment, poor living environment, and frequent natural disasters,should focus on alleviating burdens onlocal overload population, at the same time, enhance the level of basic public services and ecological quality. On the other hand,n the poverty-stricken areaswith strong resources and environment carrying capacity, the policies for poverty alleviationshould deepen institutional innovation in the respects of policy improvement and measures intensificationso as to realize the transformation of resource advantages into industrial advantages.